Thurrock Council - Gypsy, traveller and travelling ......1.4 The Thurrock GTAA is part of a wider...

Thurrock Council

Gypsy, Traveller and Travelling

Showpeople

Accommodation Assessment

Need Summary Report

January 2018

The Essex Planning Officers Association (EPOA) endorsed the Greater Essex

GTAA Report on the 25th January 2018

Thurrock Council GTAA Need Summary – January 2018

Opinion Research Services The Strand, Swansea SA1 1AF

Steve Jarman, Claire Thomas and Ciara Small

Enquiries: 01792 535300 · [email protected] · www.ors.org.uk

© Copyright January 2018

Contains public sector information licensed under the Open Government Licence v3.0

Contains OS Data © Crown Copyright (2018)

mailto:[email protected]

http://www.ors.org.uk/


Contents 1. Introduction .............................................................................................................................. 4

The Planning Definition in PPTS (2015) .................................................................................................... 5

Definition of Travelling ............................................................................................................................. 5

2. Methodology ............................................................................................................................. 8

3. Planning Definition .................................................................................................................. 10

Applying the Planning Definition ............................................................................................................ 10

Unknown Households............................................................................................................................. 11

Households that do not meet the Planning Definition .......................................................................... 12

4. Survey of Travellers ................................................................................................................. 13

Interviews with Gypsies, Travellers and Travelling Showpeople ........................................................... 13

Efforts to contact bricks and mortar households ................................................................................... 14

5. Current and Future Pitch Provision ........................................................................................... 15

New Household Formation Rates ........................................................................................................... 15

Breakdown by 5 Year Bands ................................................................................................................... 17

Planning Status of Households ............................................................................................................... 17

Bricks and Mortar Interviews ................................................................................................................. 18

Pitch Needs – Gypsies and Travellers that meet the Planning Definition .............................................. 18

Pitch Needs – Unknown Gypsies and Travellers .................................................................................... 19

Pitch Needs - Gypsies and Travellers that do not meet the Planning Definition ................................... 20

Waiting Lists ........................................................................................................................................... 20

Gammonfield Public Site ........................................................................................................................ 21

Plot Needs – Travelling Showpeople that meet the Planning Definition ............................................... 22

Plot Needs – Unknown Travelling Showpeople...................................................................................... 23

Plot Needs –Travelling Showpeople who do not meet the Planning Definition .................................... 23

Transit Recommendations ...................................................................................................................... 23

6. Conclusions ................................................................................................................................. 25

Gypsies and Travellers ............................................................................................................................ 25

Travelling Showpeople ........................................................................................................................... 25

Transit Provision ..................................................................................................................................... 25

Summary of Need to be Addressed ........................................................................................................ 25

Appendix A – Need from unknown and households that do not meet the Planning Definition .......... 27


1. Introduction

1.1 The primary objective of this Gypsy and Traveller Accommodation Assessment (GTAA) Need Summary is

to provide a robust revised assessment of current and future need for Gypsy, Traveller and Travelling

Showpeople accommodation in Thurrock for the period 2016-2033. Note that the Travelling

Showpeople yards located at Buckles Lane will be the subject of a separate assessment of need given

the scale and complexity of development at this location.

1.2 The primary reason for completing the update was the publication of a revised version of Planning

Policy for Traveller Sites (PPTS) in August 2015. This included a change to the definition of Travellers for

planning purposes. The key change that was made was the removal of the term persons…who have

ceased to travel permanently, meaning that those who have ceased to travel permanently will not now

fall under the planning definition of a Traveller for the purposes of assessing accommodation need in a

GTAA (see Paragraph 1.8 for the full definition).

1.3 The study will provide an evidence base to enable the Council to assess and meet the needs of the

Travelling Community as well as complying with their requirements towards Gypsies, Travellers and

Travelling Showpeople under the Housing Act 1985, the National Planning Policy Framework (NPPF)

2012, Planning Practice Guidance (PPG) 2014, PPTS (2015), and the Housing and Planning Act 2016. It

also provides an evidence base which can be used to support Local Plan policies.

1.4 The Thurrock GTAA is part of a wider study that covers the whole of Essex, together with the unitary

authority of Southend-on-Sea (Greater Essex). The study across all 14 local authorities has been

completed following a Joint Methodology which can be found as a separate report1.

1.5 The reporting framework for the wider Essex GTAA comprises the Essex GTAA Joint Methodology

Report; individual GTAA Need Summary Reports for each of the 14 local authorities; and an Essex GTAA

Summary Report that brings together the final outcomes from each local authority and provides figures

for Essex as a whole, figures for the wider study area, as well as providing strategic recommendations

on transit provision. The GTAA Need Summary Reports are dated when they were each published.

1.6 The purpose of this GTAA Need Summary Report is to provide the Council with a summary of the levels

of accommodation need for Gypsies, Travellers and Travelling Showpeople in Thurrock for the period

2016-2033.

1.7 The baseline date for the study is September 2016.

1 Essex, Southend-on-Sea & Thurrock Gypsy and Traveller Accommodation Assessment Joint Methodology (January

2018)


The Planning Definition in PPTS (2015)

1.8 For the purposes of the planning system the definition of a Gypsy, Traveller and Travelling Showperson

was changed in PPTS (2015). The planning definition is set out in Annex 1 and states that:

For the purposes of this planning policy “gypsies and travellers” means:

Persons of nomadic habit of life whatever their race or origin, including such persons who on

grounds only of their own or their family’s or dependants’ educational or health needs or old age

have ceased to travel temporarily, but excluding members of an organised group of travelling

showpeople or circus people travelling together as such.

In determining whether persons are “gypsies and travellers” for the purposes of this planning

policy, consideration should be given to the following issues amongst other relevant matters:

a) Whether they previously led a nomadic habit of life.

b) The reasons for ceasing their nomadic habit of life.

c) Whether there is an intention of living a nomadic habit of life in the future, and if so, how soon

and in what circumstances.

For the purposes of this planning policy, “travelling showpeople” means:

Members of a group organised for the purposes of holding fairs, circuses or shows (whether or

not travelling together as such). This includes such persons who on the grounds of their own or

their family’s or dependants’ more localised pattern of trading, educational or health needs or

old age have ceased to travel temporarily, but excludes Gypsies and Travellers as defined above.

(Planning Policy for Traveller Sites, Department for Communities and Local Government (DCLG),

August 2015)

1.9 The key change that was made to both definitions was the removal of the term persons…who have

ceased to travel permanently, meaning that those who have ceased to travel permanently will not now

fall under the planning definition of a Traveller for the purposes of assessing accommodation need in a

GTAA.

Definition of Travelling

1.10 One of the most important questions that GTAAs will need to address in terms of applying the planning

definition is what constitutes travelling? This has been determined through case law that has tested the

meaning of the term ‘nomadic’ as well as other travelling characteristics.

1.11 R v South Hams District Council (1994) – defined Gypsies as “persons who wander or travel for the

purpose of making or seeking their livelihood (not persons who travel from place to place without any

connection between their movements and their means of livelihood.)” This includes ‘born’ Gypsies and

Travellers as well as ‘elective’ Travellers such as New Age Travellers.

1.12 In Maidstone BC v Secretary of State for the Environment and Dunn (2006), it was held that a Romany

Gypsy who bred horses and travelled to horse fairs at Appleby, Stow-in-the-Wold and the New Forest,

where he bought and sold horses, and who remained away from his permanent site for up to two


months of the year, at least partly in connection with this traditional Gypsy activity, was entitled to be

accorded Gypsy status.

1.13 In Greenwich LBC v Powell (1989), Lord Bridge of Harwich stated that a person could be a statutory

Gypsy if he led a nomadic way of life only seasonally.

1.14 The definition was widened further by the decision in R v Shropshire CC ex p Bungay (1990). The case

concerned a Gypsy family that had not travelled for some 15 years in order to care for its elderly and

infirm parents. An aggrieved resident living in the area of the family’s recently approved Gypsy site

sought judicial review of the local authority’s decision to accept that the family had retained their Gypsy

status even though they had not travelled for some considerable time. Dismissing the claim, the judge

held that a person could remain a Gypsy even if he or she did not travel, provided that their nomadism

was held in abeyance and not abandoned.

1.15 That point was revisited in the case of Hearne v National Assembly for Wales (1999), where a

traditional Gypsy was held not to be a Gypsy for the purposes of planning law as he had stated that he

intended to abandon his nomadic habit of life, lived in a permanent dwelling and was taking a course

that led to permanent employment.

1.16 Wrexham County Borough Council v National Assembly of Wales and Others (2003) determined that

households and individuals could continue to lead a nomadic way of life with a permanent base from

which they set out from and return to.

1.17 The implication of these rulings in terms of applying the planning definition is that it will only include

those who travel (or have ceased to travel temporarily) for work purposes and in doing so stay away

from their usual place of residence. It can include those who have a permanent site or place of

residence, but that it will not include those who travel for purposes other than work – such as visiting

horse fairs and visiting friends or relatives. It will not cover those who commute to work daily from a

permanent place of residence.

1.18 It will also be the case that a household where some family members travel for nomadic purposes on a

regular basis, but where other family members stay at home to look after children in education, or

other dependents with health problems etc. that the household unit would be defined as travelling

under the planning definition.

1.19 Households will also fall under the planning definition if they can demonstrate that they have ceased to

travel temporarily as a result of their own or their family’s or dependants’ educational or health needs

or old age. In order to have ceased to travel temporarily these households will need to demonstrate

that they have travelled for work in the past. In addition households will also have to demonstrate that

they plan to travel again for work in the future.

1.20 This approach was endorsed by a Planning Inspector in a Decision Notice for an appeal in East

Hertfordshire (Appeal Ref: APP/J1915/W/16/3145267) that was published in December 2016. A

summary can be seen below.

Case law, including the R v South Hams District Council ex parte Gibb (1994) judgment referred

to me at the hearing, despite its reference to ‘purposive activities including work’ also refers to

a connection between the travelling and the means of livelihood, that is, an economic purpose.


In this regard, there is no economic purpose… This situation is no different from that of many

landlords and property investors or indeed anyone travelling to work in a fixed, pre-arranged

location. In this regard there is not an essential connection between wandering and work…

Whilst there does appear to be some connection between the travel and the work in this

regard, it seems to me that these periods of travel for economic purposes are very short,

amounting to an extremely small proportion of his time and income. Furthermore, the work is

not carried out in a nomadic manner because it seems likely that it is done by appointment… I

conclude, therefore, that XX does not meet the definition of a gypsy and traveller in terms of

planning policy because there is insufficient evidence that he is currently a person of a nomadic

habit of life.


2. Methodology 2.1 As part of the overall commission a Joint Methodology has been prepared that has been used to

complete GTAAs for local authorities in Essex, Southend-on-Sea and Thurrock. Although it was a

separate commission the Joint Methodology has also been used to complete the GTAA for Basildon. The

Joint Methodology sets out the overall approach that has been followed to complete the assessment of

need and is a separate document to this report.

2.2 The Joint Methodology is based on the approach that ORS have been continually refining over the past

10 years for undertaking robust and defensible GTAAs. This has been updated in light of the

introduction of the PPG in 2014, changes to PPTS in 2015 and the Housing and Planning Act (2016), as

well as responding to changes set out by Planning Ministers, with particular reference to new household

formation rates. This is an evolving methodology that has been adaptive to changes in planning policy as

well as the outcomes of Local Plan Examinations and Planning Appeals.

2.3 PPTS (2015) contains a number of requirements for local authorities which must be addressed in any

methodology. This includes the need to pay particular attention to early and effective community

engagement with both settled and traveller communities (including discussing travellers’

accommodation needs with travellers themselves); identification of permanent and transit site

accommodation needs separately; working collaboratively with neighbouring local planning authorities;

and establishing whether households fall within the planning definition for Gypsies, Travellers and

Travelling Showpeople.

2.4 In summary this included the following key stages:

» Desk-Based Review

» Stakeholder Engagement

» Working Collaboratively with Neighbouring Planning Authorities

» Survey of Travelling Communities

» Engagement with Bricks and Mortar Households

» Applying the PPTS Planning Definition

» Calculating Current and Future Need

» Transit Provision

» Final Outcomes


2.5 The approach is the same as that considered in April 2016 and July 2017 by the Planning Inspector for

the Gloucester, Cheltenham and Tewkesbury Joint Core Strategy. She concluded in her final

Examination Report that was published in October 2017:

‘The methodology behind this assessment incorporates a full demographic study of all

occupied pitches, a comprehensive effort to undertake interviews with Gypsy and Traveller

households, and consideration of the implications of the new national policy. I am satisfied

that the GTAA provides a robust and credible evidence base and I accept its findings.’


3. Planning Definition 3.1 The primary change introduced by PPTS (2015) in relation to the assessment of need was the change in

the definition of a Gypsy, Traveller or Travelling Showperson for planning purposes. Through the site

interviews ORS collected information necessary to assess each household against the planning

definition. As PPTS (2015) has only recently been issued only a small number of relevant appeal

decisions have been issued by the Planning Inspectorate on how the new planning definition should be

applied – these support the view that households need to be able to demonstrate that they travel for

work purposes to meet the planning definition, and stay away from their usual place of residence when

doing so. See Paragraph 1.20 for a recent example.

Applying the Planning Definition

3.2 The household survey included a structured section of questions to record information about the

travelling characteristics of household members. This included questions on the following key issues:

» Whether any household members have travelled in the past 12 months.

» Whether household members have ever travelled.

» The main reasons for travelling.

» Where household members travelled to.

» The times of the year that household members travelled.

» Where household members stay when they are away travelling.

» When household members stopped travelling.

» The reasons why household members stopped travelling.

» Whether household members intend to travel again in the future.

» When and the reasons why household members plan to travel again in the future.

3.3 When the household survey was completed the outcomes from these questions on travelling were used

to determine the status of each household against the planning definition in PPTS (2015). Through a

combination of responses households need to provide sufficient information to demonstrate that

household members travel for work purposes and in doing so stay away from their usual place of

residence, or that they have ceased to travel temporarily due to education, ill health or old age, and

plan to travel again for work purposes in the future. The same definition applies to Travelling

Showpeople as to Gypsies and Travellers.

3.4 Households that need to be formally considered in the GTAA fall under one of 3 classifications that will

determine whether their housing needs will need to be assessed in the GTAA. Only those households

that meet, or may meet, the planning definition will form the components of need to be included in the

GTAA:


» Households that travel under the planning definition.

» Households that have ceased to travel temporarily under the planning definition.

» Households where an interview was not possible who may fall under the planning

definition.

3.5 Whilst the needs of those households that do not meet the planning definition do not need to be

included in the GTAA, they have been assessed to provide the Council with information on components

of need to be addressed as part of a Strategic Housing Market Assessment (SHMA) or a Housing and

Economic Development Needs Assessment (HEDNA) for example, and through separate Local Plan

policies.

Unknown Households

3.6 As well as calculating need for households that meet the planning definition, the needs of any

households where an interview was not completed (either due to refusal to be interviewed or

households that were not present during the fieldwork period – despite repeated visits) need to be

assessed as part of the GTAA where they are believed to be ethnic Gypsies and Travellers who may

meet the planning definition. Whilst there is no law or guidance that sets out how the needs of these

households should be addressed, an approach has been taken that applies an estimate of potential

need from these households. This will be an additional need figure over and above the need identified

for households that do meet the planning definition.

3.7 The estimate seeks to identify potential current and future need from pitches known to be temporary or

unauthorised, and through new household formation. For the latter the national rate of 1.50%2 has

been used as the demographics of residents are unknown. This approach is also consistent with the

outcomes of a recent Planning Appeal where access to a site was not possible but basic information was

known about the number of households residing there. (Planning Inspectorate Ref:

APP/Z6950/A/14/2212012).

3.8 ORS are of the opinion that it would not be appropriate when producing a robust assessment of need to

make any firm assumptions about whether or not households where an interview was not completed

meet the planning definition based on the outcomes of households where an interview was completed.

However, data that has been collected from over 2,500 household interviews that have been completed

by ORS since the changes to PPTS in 2015 suggests that overall approximately 10% of households who

have been interviewed meet the planning definition. This would suggest that it is likely that only a small

proportion of the potential need identified from unknown households will need conditioned3 Gypsy and

Traveller pitches, and that the needs of the majority from unknown households will need to be

addressed through separate Local Plan policies.

3.9 The Council will need to carefully consider how to address the needs associated with unknown

Travellers in Local Plan policies as it is unlikely that all of these will have a need that should be

addressed through the provision of conditioned Gypsy or Traveller pitches. In terms of Local Plan

policies the Council could consider the use of a criteria-based policy as suggested in PPTS (2015)

2 See Paragraph 5.8

3 Pitches with planning conditions restricting occupation to Gypsies or Travellers.


Paragraph 11, for any unknown households that do provide evidence that they meet the planning

definition, and also take into account the NPPF.

3.10 How the ORS methodology addresses need from unknown households was supported by the Planning

Inspector for a recent Local Plan Examination in Maldon, Essex. In his Report that was published on 29th

June 2017 he concluded:

Households that do not meet the Planning Definition

3.11 Households who do not travel for work or have ceased to travel permanently now fall outside the

planning definition of a Traveller. However Romany Gypsies and Irish and Scottish Travellers may be

able to demonstrate a right to culturally appropriate accommodation under the Equality Act (2010). In

addition provisions set out in the Housing and Planning Act (2016) now include a duty (under Section 8

of the 1985 Housing Act that covers the requirement for a periodical review of housing needs) for local

authorities to consider the needs of people residing in or resorting to their district with respect to the

provision of sites on which caravans can be stationed, or places on inland waterways where houseboats

can be moored. Draft Guidance4 related to this section of the Act has been published setting out how

the government would want local housing authorities to undertake this assessment and it is the same as

the GTAA assessment process. The implication is therefore that the housing needs of any Gypsy and

Traveller households who do not meet the planning definition of a Traveller will need to be assessed as

part of the wider housing needs of the area, for example through the SHMA or HEDNA process, and will

form a subset of the wider need arising from households residing in caravans.

4 “Draft guidance to local housing authorities on the periodical review of housing needs for caravans and

houseboats.” (March 2016)


4. Survey of Travellers Interviews with Gypsies, Travellers and Travelling Showpeople

4.1 One of the major components of this study was a detailed survey of the Gypsy, Traveller and Travelling

Showpeople population living in Thurrock.

4.2 Through the desk-based research ORS identified 3 public sites (64 pitches); 4 private sites (25 pitches); 2

temporary sites (9 pitches); 5 tolerated sites (19 pitches); 4 unauthorised sites (14 pitches); no transit

sites; and 2 Travelling Showpeople yards (8 plots)5.

4.3 Interviews were completed between January and September 2016, with some follow-up interviews also

completed in July and October 2017. Up to 3 attempts were made to interview each household where

they were not present when interviewers visited.

4.4 The table below sets out the sites/yards that were identified and visited, the number of pitches/plots,

the number of interviews that were completed, and the reasons why interviews were not completed. Figure 1 – Gypsy, Traveller and Travelling Showpeople sites and yards visited in Thurrock

Site/Yard Status Pitches/Plots Interviews Reasons for not completing interviews

Public Sites

Gammonfield 21 13 8 x no contact possible

Pilgrims Lane 22 18 1 x refusal, 3 x no contact possible

Ship Lane 21 8 1 x refusal, 12 x no contact possible

Private Sites

Biggin Lane 10 0 2 x refusals, 1 x non-Travellers, 4 x unimplemented pitches, 3 x no contact possible

Herd Lane 10 1 3 x refusals, 4 x non-Travellers, 2 x unimplemented pitches

The Paddock 1 0 1 x no contact possible

The Willow 4 0 4 x proxy interviews6

Temporary Sites

Malvern Road 5 1 4 x proxy interviews

Southend Road (Manor View) 4 2 2 x proxy interviews

Tolerated Sites

Echo Farm 6 4 2 x vacant pitches

Love Lane 1 1 -

5 Excluding yards and plots at Buckles Lane which will be the subject of a separate assessment of need.

6 Demographic details of other site residents obtained during the interviews that were completed but insufficient

information to assess households against the Planning Definition.


Lower Crescent 7 2 5 x no contact possible

Ship Lane (off Love Lane) 4 0 4 x no contact possible

Sleepy Hollow 1 0 1 x no contact possible

Unauthorised Sites

Holy Lands 3 0 3 x refusals

St Chads North 5 1 4 x proxy interviews

St Chads South 5 0 5 x no contact possible

Willows 1 0 1 x no contact possible

TSP Yards

Chadfields 5 3 1 x refusal, 1 x non-Travellers

Fairacres 3 1 2 x non-Travellers

TOTAL 139 55

Efforts to contact bricks and mortar households

4.5 ORS applied a rigorous approach to making contact with bricks and mortar households as this is a

common issue raised at Local Plan examinations and planning appeals. Contacts were sought through a

range of sources including the interviews with people on existing sites and yards, intelligence from the

Council and local housing providers, and adverts on social media (including the Friends Families and

Travellers Facebook group), as well as writing to households on waiting lists for public sites.

4.6 At the time of concluding this report no contacts had been identified to interview (although a number of

letters were sent by Registered Providers inviting known Gypsy and Traveller to contact ORS if they had

any current or future accommodation needs).


5. Current and Future Pitch Provision

5.1 This section focuses on the additional pitch provision that is needed in Thurrock currently and to 2033.

This includes both current unmet need and need which is likely to arise in the future. This time period

allows for robust forecasts of the requirements for future provision, based upon the evidence contained

within this study and also secondary data sources. Whilst the difficulty in making accurate assessments

beyond 5 years has been highlighted in previous studies completed by ORS, the approach taken in this

study to estimate new household formation has been accepted by Planning Inspectors as the most

appropriate methodology to use.

5.2 We would note that this section is based upon a combination of the on-site surveys, planning records

and discussions with Officers from the Council. In many cases, the survey data is not used in isolation,

but instead is used to validate information from planning records or other sources.

5.3 This section includes an assessment of the total additional provision which is required in the area and

the need for any transit sites and/or emergency stopping place provision.

New Household Formation Rates

5.4 Nationally, a household formation and growth rate of 3.00% net per annum has been commonly

assumed and widely used in local Gypsy and Traveller assessments, even though there is no statistical

evidence of households growing so quickly. The result has been to inflate both national and local

requirements for additional pitches unrealistically. In this context, ORS has prepared a Technical Note on

Household Formation and Growth Rates (August 2015). The main conclusions are set out below and the

full document can be found in the Joint Methodology Report.

5.5 Those seeking to provide evidence of high annual net household growth rates for Gypsies and Travellers

have sometimes sought to rely on increases in the number of caravans, as reflected in caravan counts.

However, caravan count data is unreliable and erratic – so the only robust way to project future

population and household growth is through demographic analysis.

5.6 The Technical Note concludes that in fact, the growth in the national Gypsy and Traveller population

may be as low as 1.25% per annum – much less than the 3.00% per annum often assumed, but still

greater than in the settled community. Even using extreme and unrealistic assumptions, it is hard to find

evidence that net Gypsy and Traveller population and household growth rates are above 2.00% per

annum nationally.

5.7 The often assumed 3.00% per annum net household growth rate is unrealistic and would require clear

statistical evidence before being used for planning purposes. In practice, the best available evidence

supports a national net household growth rate of 1.50% per annum for Gypsies and Travellers. This view

has been supported by Planning Inspectors in a number of Decision Notices. The most recent was in


relation to an appeal in Doncaster that was issued in November 2016 (Ref: APP/F4410/W/15/3133490)

where the agent acting on behalf of the appellant claimed that a rate closer to 3.00% should be used.

The Inspector concluded:

In assessing need account also needs to be taken of likely household growth over the

coming years. In determining an annual household growth rate the Council relies on the

work of Opinions Research Services (ORS), part of Swansea University. ORS’s research

considers migration, population profiles, births & fertility rates, death rates, household size

data and household dissolution rates to determine average household growth rates for

gypsies and travellers. The findings indicate that the average annual growth rate is in the

order of 1.5% but that a 2.5% figure could be used if local data suggest a relatively youthful

population. As the Council has found a strong correlation between Doncaster’s gypsy and

traveller population age profile and the national picture, a 1.5% annual household growth

rate has been used in its 2016 GTANA. Given the rigour of ORS’s research and the Council’s

application of its findings to the local area I accept that a 1.5% figure is justified in the case

of Doncaster.

5.8 In addition, the Technical Note has recently been accepted as a robust academic evidence base and has

been published by the Social Research Association in its journal Social Research Practice. The overall

purpose of the journal is to encourage and promote high standards of social research for public benefit.

It aims to encourage methodological development by giving practitioners the space and the incentive to

share their knowledge – see link below.

http://the-sra.org.uk/journal-social-research-practice/

5.9 ORS assessments take full account of the net local household growth rate per annum calculated on the

basis of demographic evidence from the site surveys. The ‘baseline’ includes all current authorised

households, all households identified as in current need, as well as households living on tolerated

unauthorised pitches or plots who are not included as components of current need. The assessments of

future need also takes account of modelling projections based on birth and death rates, fertility rates,

household dissolution, and in-/out-migration.

5.10 Overall, the household growth rate used for the assessment of future needs has been informed by local

evidence. This demographic evidence from the household interviews has been used to adjust the

national growth rate of 1.50% up or down based on the proportion of those aged under 18 by planning

status. This often leads to different formation rates being applied to households that do and do not

meet the planning definition – for example many households that do not meet the planning definition

are retired and do not have children and the result of this is to reduce the rate of new household

formation.

5.11 In certain circumstances where the numbers of households and children are low it may not be

appropriate to apply a percentage rate for new household formation. In these cases a judgement will be

made on likely new household formation based on the age and gender of the children.

5.12 In Thurrock for Gypsies and Travellers who meet the planning definition formation a rate of 2.00% has

been used based on the demographics of the households (49% aged under 18); for unknown Travellers

http://the-sra.org.uk/journal-social-research-practice/


the ORS national rate of 1.50% has been used; and for those who do not meet the planning definition a

rate of 2.15% has been used based on the demographics of the households (52% aged under 18).

5.13 For Travelling Showpeople who meet the planning definition a rate of 2.15% has been used based on

the demographics of the households (51% aged under 18); for unknown Travelling Showpeople the ORS

national rate of 1.00% has been used; and for Travelling Showpeople who do not meet the planning

definition there is no new household formation as there are no children or younger adults.

Breakdown by 5 Year Bands

5.14 In addition to tables which set out the overall need for Gypsies, Travellers and Travelling Showpeople,

the overall need has also been broken down by 5 year bands as required by PPTS (2015). The way that

this is calculated is by including all current need (for example from unauthorised pitches, pitches with

temporary planning permission, concealed and doubled-up households, teenage children in need of a

pitch of their own in the next 5 years, and net movement from bricks and mortar) in the first 5 years. In

addition the total net new household formation is split across the 5 year bands based on the rate of

growth that was applied – as opposed to being spread evenly.

Planning Status of Households

5.15 The outcomes from the questions in the household survey on travelling were used to determine the

status of each household against the planning definition in PPTS (2015). This included information on

whether household members have ever travelled; why they have stopped travelling; the reasons that

they travel; and whether and for what reason they plan to travel again in the future.

5.16 Figure 2 shows that for Gypsies and Travellers 8 households and for Travelling Showpeople 3

households meet the planning definition of a Traveller in that it was able to be determined that they

travel for work purposes and stay away from their usual place of residence, or have ceased to travel

temporarily. A total of 43 Gypsy and Traveller households and 1 Travelling Showpeople household did

not meet the planning definition as they were not able to provide information that they travel away

from their usual place of residence for the purpose of work, or that they have ceased to travel

temporarily due to children in education, ill health or old age. Some did travel for cultural reasons, or to

visit relatives or friends, and others had ceased to travel permanently – these households did not meet

the planning definition.

5.17 The number of households on each site where an interview was not possible are recorded as unknown.

The reasons for this included households that refused to be interviewed and households that were not

present during the fieldwork period – despite up to 3 visits.


Figure 2 – Planning status of households in Thurrock

Bricks and Mortar Interviews

5.18 Despite all the efforts that were made it was not possible to complete any interviews with Gypsy and

Traveller households living in bricks and mortar in Thurrock as none were identified through the

fieldwork, adverts that were placed, or discussions with Council Officers. In addition no households in

bricks and mortar are known to have approached the Council during the GTAA study period seeking a

site and none have declared themselves homeless. Given that no one came forward during the study

period, it is fair to conclude that no allowance should be made for bricks and mortar households

because none have identified themselves as being in need.

Pitch Needs – Gypsies and Travellers that meet the Planning Definition

5.19 The households who meet the planning definition were found on 1 public site, 1 temporary site, 2

tolerated sites and 1 unauthorised site. Analysis of the household interviews identify that there is need

for 1 additional pitch that is currently unauthorised, 4 additional pitches for teenage children in need of

a pitch of their own in the next 5 years, 1 pitch that has temporary planning permission and 4 additional

pitches through new household formation using a rate of 2.00% based on the demographics of those

who were interviewed.

5.20 Therefore the overall level of additional need for those households who meet the planning definition of

a Gypsy or Traveller is for 10 additional pitches over the GTAA period to 2033.

5.21 The site interviews also identified potential supply in the first 5 years of the GTAA period from 2 vacant

pitches, 2 households on public sites seeking to move to bricks and mortar and from 5 households on

public sites seeking to move to sites away from the Thurrock or to private sites in Thurrock. However

discussions with the Council’s Gypsy Liaison Officer confirmed that the 3 public sites are predominantly

occupied by 3 extended family groups and any vacant pitches would be allocated to meet any

immediate need arising from the sites and cannot be considered as available for general occupation.

The Council should continue to monitor how pitch turnover can address any need arising from

concealed or doubled-up households or single adults, or from teenage children in need of a pitch of

their own in the next 5 years who are currently residing on public sites.

Site Status Meet Planning

Definition Unknown Do Not Meet

Planning Definition TOTAL

Public Sites 2 25 37 64

Private Sites 0 13 1 14

Temporary Sites 1 6 2 9

Tolerated Sites 4 10 3 17

Unauthorised Sites 1 13 0 14

TSP Yards 3 1 1 5

TOTAL 11 68 44 123


Figure 3 – Additional need for Gypsy and Traveller households in Thurrock that meet the Planning Definition (2017-2033)

Gypsies and Travellers - Meeting Planning Definition Pitches

Supply of Pitches

Additional supply from vacant public and private pitches 0

Additional supply from pitches on new sites 0

Pitches to be vacated by households moving to bricks and mortar 0

Pitches to be vacated by households moving to another area 0

Total Supply 0

Current Need

Households on unauthorised developments 1

Households on unauthorised encampments 0

Concealed households/Doubling-up/Over-crowding 0

Movement from bricks and mortar 0

Households on waiting lists for public sites 0

Total Current Need 1

Future Need

5 year need from teenage children 4

Households on sites with temporary planning permission 1

In-migration 0

New household formation 4

(Household base 11 and formation rate 2.00%)

Total Future Needs 9

Net Pitch Total = (Current and Future Need – Total Supply) 10 Figure 4 – Additional need for Gypsy and Traveller households in Thurrock that meet the Planning Definition by 5 year periods

Years 0-5 6-10 11-15 16-17

Total 2016-21 2021-26 2026-31 2031-33

7 1 2 0 10

Pitch Needs – Unknown Gypsies and Travellers

5.22 Whilst it was not possible to determine the planning status of a total of 67 households as they were not

on site at the time of the fieldwork, the needs of these households still need to be recognised by the

GTAA as they are believed to be Gypsies and Travellers and may meet the planning definition.

5.23 ORS are of the opinion that it would not be appropriate when producing a robust assessment of need to

make any firm assumptions about whether or not households where an interview was not completed

meet the planning definition based on the outcomes of households in that local authority where an

interview was completed.

5.24 However data that has been collected from over 2,500 household interviews that have been completed

by ORS since the changes to PPTS in 2015 suggests that nationally approximately 10% of households

that have been interviewed meet the planning definition.


5.25 This would suggest that it is likely that only a small proportion of the potential need identified from

these households will need conditioned Gypsy and Traveller pitches, and that the needs of the majority

will need to be addressed through other means such as the SHMA or HEDNA and through separate Local

Plan policies.

5.26 Should further information be made available to the Council that will allow for the planning definition to

be applied to the unknown households, the overall level of need could rise by up to 13 pitches that are

unauthorised, by up to 6 pitches that have temporary planning permission, and by up to 19 pitches from

new household formation (this uses a base of the 67 households and a net growth rate of 1.50%7).

Therefore additional need could increase by up to a further 38 pitches, plus any concealed adult

households or 5 year need arising from teenagers living in these households (if all 67 unknown pitches

are deemed to meet the planning definition). However, as an illustration, if the ORS national average of

10% were to be applied this could be as few as 4 additional pitches.

5.27 Tables setting out the components of need for unknown households can be found in Appendix A.

Pitch Needs - Gypsies and Travellers that do not meet the Planning Definition

5.28 It is not now a requirement for a GTAA to include an assessment of need for households that do not

meet the planning definition. However this assessment is included for illustrative purposes and to

provide the Council with information on levels of need that will have to be addressed through the SHMA

or HEDNA and through separate Local Plan policies.

5.29 On this basis, it is evident that whilst the needs of the 43 households who do not meet the planning

definition will represent only a very small proportion of the overall housing need, the Council will still

need to ensure that arrangements are in place to properly address these needs – especially as some

identified as Romany Gypsies or Irish Travellers.

5.30 The 32 households live on 3 public sites, 1 private site, 1 temporary site and 3 tolerated sites. Analysis of

the site interviews has identified a need from 2 concealed or doubled-up households or single adults, 9

teenage children in need of a pitch of their own in the next 5 years, 2 pitches with temporary planning

permission, and 24 from new household formation using a rate of 2.15% based on the demographics

from the households that were interviewed. Therefore the total additional need is for 37 pitches over

the GTAA period to 2033.

5.31 A summary of this need can be found in Appendix A.

Waiting Lists

5.32 There are 3 public sites in Thurrock. The waiting list for these sites is managed by the Council’s Gypsy

Liaison Officer. He confirmed that there are very low numbers of households on the waiting list and that

the majority were currently living on the sites and would take the next pitch that became available. As

such there is no additional need arising from the waiting list as the majority of need has already been

included from concealed or doubled-up households or single adults.

7 The ORS Technical Note on Population and Household Growth (2015) has identified a national growth rate of

1.50% for Gypsies and Travellers which has been applied in the absence of further demographic information about these households.


5.33 Should any households wish to be considered for a tenancy on one of the public sites they may have to

provide information on their travelling patterns during the site allocation process.

Gammonfield Public Site

5.34 Concerns were raised by many of the residents living on the public site at Gammonfield that it is on the

preferred route for the new Lower Thames Crossing and may need to be relocated. Following the

Statutory Consultation that is being undertaken on the preferred route during 2018 the Council may

need to revisit any need arising from the site if it needs to be relocated.


Plot Needs – Travelling Showpeople that meet the Planning Definition

5.35 There were 2 small Travelling Showpeople yards identified in Thurrock8. The 3 households who meet

the planning definition of Travelling were all found on 1 of the yards. Analysis of the household

information for the households that meet the planning definition indicates that there is a current need

for 4 additional plots for teenage children in need of plots of their own in the next 5 years, 1 additional

plot from in-migration for family members currently forced to live outside of Thurrock due to over-

crowing on 1 of the plots, and 7 additional plots from new household formation using a rate of 2.15%

derived from the household demographics..

5.36 Therefore the overall level of additional need for those households who meet the planning definition of

a Travelling Showperson is for 12 additional plots over the GTAA period to 2033.

Figure 5 – Additional need for Travelling Showpeople households in Thurrock that meet the Planning Definition (2016-33)

Figure 6 – Additional need for Travelling Showpeople households in Chelmsford City Council that meet the Planning Definition by 5 year periods

Years 0-5 6-10 11-15 16-17

2016-21 2021-26 2026-31 2031-33 Total

7 2 2 1 12

8 Excluding plots on yards at Buckles Lane which will be the subject of a separate assessment of need.

Travelling Showpeople - Meeting Planning Definition Pitches

Supply of Plots

Additional supply from vacant public and private plots 0

Additional supply from plots on new yards 0

Plots to be vacated by households moving to bricks and mortar 0

Plots to be vacated by households moving to another area 0

Total Supply 0

Current Need






Future Need

5 year need from teenage children 4

Households on plots with temporary planning permission 0

In-migration 1




Net Plot Total = (Current and Future Need – Total Supply) 12


Plot Needs – Unknown Travelling Showpeople

5.37 Whilst it was not possible to determine the planning status of a total of 1 household as they either

refused to be interviewed, or were not at home at the time of the fieldwork, the needs of these

households still need to be recognised by the GTAA as they are believed to be Travelling Showpeople

and may meet the planning definition.

5.38 Based on a visual assessment of the plot ORS are confident that it is occupied by Travelling Showpeople.

However this assessment was not able to determine the precise number of households living on the

plot or whether they all meet the planning definition. For the purposes of the GTAA an estimate of 12

household units has been used for the calculation of new household formation based on analysis of

recent aerial photos. Using the ORS national rate of 1% this gives new household growth of 2 additional

plots over the GTAA period.

Plot Needs –Travelling Showpeople who do not meet the Planning Definition

5.39 Just 1 Travelling Showperson household did not meet the planning definition. They are retired and

stated that the yard where they rent a plot is being sold and that they are seeking to move to bricks and

mortar. As such there is no current or future accommodation need.

Transit Recommendations

5.40 Analysis of previous stakeholder interviews, Traveller Caravan Count Data and data collected by the

Essex County Traveller Unit (ECTU) shows that there are high and increasing numbers of unauthorised

encampments in many parts of Greater Essex. However, the analysis does not provide a detailed

enough spatial view on where and how much provision is needed. It also does not explore issues such as

small numbers of households accounting for multiple records of encampments.

5.41 As such it is recommended that further work is undertaken to complete more in-depth analysis of data

recorded by ECTU and other relevant sources. This work will be completed by ORS over the next 12

months.

5.42 Discussions held with Officers from ECTU have confirmed that analysis of ‘Direction to Leave Notices’

may provide a more robust spatial appraisal of current and future transit needs. They have advised that

each of these notices contains information such as the number of caravans and vehicle registration

details. From this information ORS believe that they would be able to establish with a higher degree of

certainty, the number of transit sites or stopping places required throughout Essex, Southend-on-Sea

and Thurrock.

5.43 This additional analysis will include work on identifying the number of households accounting for

multiple records of encampments; analysis of the average number of caravans per encampment and the

average length of stay; and identification of the most common locations for encampments. It is hoped

that the outcomes of this work will be to identify a figure for the average number of transit caravan

spaces that are needed at any given point in time; whether this can be addressed through permanent

transit sites, emergency stopping places and negotiated stopping arrangements; and where the

geographic need is for new transit provision.


5.44 In the meantime it is recommended that the situation relating to levels of unauthorised encampments

throughout the area should continue to be monitored by ECTU and individual local authorities whilst

any potential changes associated with PPTS (2015) develop.

5.45 Finally work to address unauthorised encampments is a complex issue and it is recommended, through

the duty to cooperate, that individual local authorities work closely with Essex County Council and ECTU

both to identify the need for future transit provision and how to deal with unauthorised encampments

when they occur.


6. Conclusions 6.1 This study provides an robust evidence base to enable the Council to assess the housing needs of the

Travelling Community as well as complying with their requirements towards Gypsies, Travellers and

Travelling Showpeople under the Housing Act 1985, the National Planning Policy Framework (NPPF)

2012, Planning Practice Guidance (PPG) 2014, Planning Policy for Traveller Sites (PPTS) 2015, and the

Housing and Planning Act 2016. It also provides the evidence base which can be used to support Local

Plan policies.

Gypsies and Travellers

6.2 In summary there is a need for 10 additional pitches in Thurrock over the GTAA period to 2033 for

Gypsy and Traveller households that meet the planning definition; a need for up to 38 additional pitches

for Gypsy and Traveller households that may meet the planning definition; and a need for 37 additional

pitches for Gypsy and Traveller households who do not meet the planning definition.

Travelling Showpeople

6.3 In summary there is a need for 12 additional plots in Thurrock over the GTAA period to 2033 for

Travelling Showpeople households that meet the planning definition; a need for up to 2 additional plots

for Travelling Showpeople households that may meet the planning definition; and a need for no

additional plots for Travelling Showpeople households who do not meet the planning definition.

Transit Provision

6.4 Whilst there is historic evidence to suggest that there may be a need for some form of transit provision

in Greater Essex, it is not recommended that any should be provided at this point in time as the

robustness of the data which could indicate this is not considered to be sufficient. It is recommended

that the situation relating to levels of unauthorised encampments should continue to be monitored

whilst any potential changes associated with PPTS (2015) develop. It is also recommended that further

work is completed to identify the need for transit provision on an Essex-wide basis. Thurrock Council is

therefore recommended to engage, through the Duty to Cooperate, with the other Essex authorities in

the future to ensure this work on Transit Sites can be completed. This will establish whether there is a

need for investment in more formal transit sites or emergency stopping places.

Summary of Need to be Addressed

6.5 Taking into consideration all of the elements of need that have been assessed, together with the

assumptions on the proportion of unknown households that are likely to meet the planning definition,

the table below sets out the likely number of pitches that will need to be addressed either as a result of

the GTAA, or through the SHMA or HEDNA and through separate Local Plan policies.


6.6 Total need from Gypsy and Traveller households that meet the planning definition, from unknown

households, and from households that do not meet the planning definition is for 85 additional pitches.

For Travelling Showpeople total need is for 14 additional plots. The tables below break need down by

the GTAA and SHMA/HEDNA by taking 10% (the ORS national average for Gypsies and Travellers) of

need from unknown households and adding this to the need from households that meet the planning

definition, and by adding the remaining 90% of need from unknown households to the need from

households that do not meet the planning definition. For Travelling Showpeople the ORS national

average of 70% has been used for unknown households that meet the Planning Definition.

Figure 5 – Additional need for Gypsy and Traveller households broken down by potential delivery method

Figure 6 – Additional need for Travelling Showpeople households broken down by potential delivery method

Site Status GTAA SHMA/HEDNA TOTAL

Meet Planning Definition (+ 10% Unknown) 14 (10+4) 0 14

Not meeting Planning Definition (+ 90% Unknown) 0 71 (37+34) 71

TOTAL 14 71 85

Site Status GTAA SHMA/HEDNA TOTAL

Meet Planning Definition (+ 70% Unknown) 13 (12+1) 0 13

Not meeting Planning Definition (+ 90% Unknown) 0 1 (0+1) 1

TOTAL 13 1 14


Appendix A – Need from unknown and households that do not meet the Planning Definition Figure 7 - Additional need for unknown Gypsy and Traveller households in Thurrock (2016-33)

Gypsies and Travellers - Unknown Pitches

Supply of Plots



Pitches vacated by households moving to bricks and mortar 0

Pitches vacated by households moving away from the study area 0

Total Supply 0

Current Need







Future Need

5 year need from older teenage children 0


In-migration 0


(Household base 67 and formation rate of 1.50%)


Net Pitch Total = (Current and Future Need – Total Supply) 38 Figure 8 - Additional need for unknown Gypsy and Traveller households in Thurrock by 5 year periods

Years 0-5 6-10 11-15 16-17

Total 2016-21 2021-26 2026-31 2031-33

24 5 6 3 38


Figure 9 - Additional need Gypsy and Traveller households in Thurrock that do not meet the Planning Definition (2016-33)

Gypsies and Travellers – Not Meeting New Definition Pitches

Supply of Pitches



Pitches vacated by households moving to bricks and mortar 0

Pitches vacated by households moving away from the study area 0

Total Supply 0

Current Need







Future Need

5 year need from older teenage children 9


In-migration 0




Net Pitch Total = (Current and Future Need – Total Supply) 37 Figure 10 - Additional need for Gypsy and Traveller households in Thurrock that do not meet the Planning Definition by 5 year periods

Years 0-5 6-10 11-15 16-17

Total 2016-21 2021-26 2026-31 2031-33

19 7 7 4 37

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